THE PEOPLE S REPUBLIC OF CHINA THE THIRD NATIONAL REPORT UNDER THE CONVENTION ON NUCLEAR SAFETY

Transcription

1 English Version THE PEOPLE S REPUBLIC OF CHINA THE THIRD NATIONAL REPORT UNDER THE CONVENTION ON NUCLEAR SAFETY August 2004 Beijing

2 Content 1 Introduction General Situation of the Peaceful Utilizations of Nuclear Energy in China Policy and Objective for Nuclear Power Development Nuclear Safety Policy Summary on Implementing Convention Themes of the Report Existing Nuclear Power Plants List of Existing Nuclear Power Plants General Situation of Existing NPPs Performance Indicators and Trend Safety Status of NPPs in China Legislation and Regulation Nuclear Safety Laws,Codes and Guides General Description of Nuclear safety Laws, Codes and Guides Issuded Laws, Regulations and Guides Newly Issued Laws,Regulations and Guides on Nuclear Safety Nuclear Safety Regulation Nuclear Safety Regulation System Duties and Responsibilities of Regulatory Bodies on Nuclear Safety Organization Structure of Regulatory Bodies Nuclear Safety Inspection Licensing System Types of Licenses for NPP Issuance of NPP Licenses Responsibilities of the Licensee Nuclear Industry Administration Duties and Responsibilities of the CAEA Organization Structure of the CAEA...22 i

3 4. General Safety Considerations Priority to Safety The Principle of Safety First and Nuclear Safety Objectives Licensee s Commitment to Safety Cultivation of Safety Culture Regulatory Control Management of Nuclear Industry Administration Good Practices Related to Safety Financial and Human Resources Financial Resources Human Resources Human Factors Actions Taken to Prevent and Correct Human Errors Measures in the Operation Management Functions of the Regulatory Body and the Operating Organization Quality Assurance Quality Assurance Policies Basic Requirements on Quality Assurance Establishment, Execution, Evaluation and Improvement on QAPs of NPPs Regulatory Control Activities Assessment and Verification of Safety Licensing Process for Different Stages of an NPP Main Methods of Safety Assessment and Verification in NPPs Control Activities of Regulatory Body Radiation Protection Principled Requirement of Radiation Protection Measures Taken in NPPs to Keep as Low As Reasonably Achievable (ALARA) Personnel Exposure Control...55 ii

4 4.6.4 Environment Radioactivity Monitoring Control Activities of the Regulatory body Emergency Preparedness Basic Requirements for Emergency Preparedness Emergency Preparedness Measures Training and Exercises for Emergency Preparedness Progress of Emergency Preparedness Activities International Arrangements International Cooperation on Nuclear Safety Safety of Nuclear Power Plants Siting Regulations and Requirements on Nuclear Power Plant Siting Licensing Process of Siting Criteria for NPP Siting Implementation of Codes on the Safety of Nuclear Power Plant Siting Sustaining Surveillance Activities Related to the Siting Design and Construction Regulations and Requirements of the Design and Construction of NPPs Process of Review and Approval of the Qualification and the Permit for Design and Construction Defense-in-Depth Conception and Its Applications Prevention and Mitigation of Accidents Adoption of the Proven and Up-to-Standard Process and Technology Optimized Design for Operator Performance Regulatory Activities of the SEPA (NNSA) Operation Basic Requirements of Nuclear Power Plant Operation Operation Licensing Process Measures Taken to Assure the Operation Safety Planned Activities and Their Progress on Improving Nuclear Safety iii

5 6.1 Revision and Improvement of the Regulations on Nuclear Safety Further Enhancement of Nuclear Safety Culture Fulfilment of the System of the Professional Qualification of the Registered Nuclear Safety Engineers Further Reinforcement of Operation Experience Feedback System Significant Technical Improvement Reinforcement of the Development of Countermeasures Against the Severe Accidents of the NPPs Several Measures for Strengthening the Capabilities of the Regulatory Body Periodic Safety Review and Operation Assessment Periodic Safety Review Operation Assessment Spreading Application of the Probabilistic Safety Assessment Improvement of the Emergency Preparedness Annex 1 The List of Nuclear Power Plants in China (by December 31, 2003)..129 Annex 2 Performance Indicators of Operational Units (from 2001 to 2003) Annex 3 Laws, Regulations and Guidelines of China on Nuclear Safety Appendix 1 Occupational Exposure of NPPs in China Appendix 2 Percent (%) of Radioactive Effluents to the Annual Discharge Limits Set by National Standards Appendix 3 Operational Events Appendix 4 Licensed Reactor Operators and Senior Reactor Operators iv

6 1 INTRODUCTION The Chinese government attaches high importance to nuclear safety, ratified and approved to participate in the Convention on Nuclear Safety, has undertaken the safety responsibilities for nationwide nuclear power plants (NPPs), and made unremitting efforts to meet and keep a high level of nuclear safety standard accepted internationally. 1.1 General Situation of the Peaceful Utilizations of Nuclear Energy in China Nuclear power shold be a safe, clean and economic energy source. Chinese government has always laid emphasis on and supported the peaceful utilization of nuclear energy and nuclear technology. Nuclear power development in China has been more than 20 years since the construction of Qinshan NPP, a first NPP unit designed and built by China. Through the practices in the construction and operation of Qinshan NPP and Guangdong Daya Bay NPP, and the subsequent addition of four NPPs during the period of The Ninth State Five-year Plan ( ), China has obtained plenty of experience on design, manufacturing, construction and operation of NPPs. These nuclear projects have positive impact both on economy and society, as well as serve the basis for future self-reliance development of nuclear power. By the end of 2003, the eight operating units had a total installed capacity of 6364MWe that represents 1.63% of total installed capacity of electricity generation in 2003 in Mainland of China. In 2003, the electric generation from all operating NPPs was added up to 43.8 billion kwh, accounted for approximately 2.30% of total electric generation in China. Along with new NPPs entering service, shortage of electricity in the eastern coastal region was mitigated, and local economy development was improved. Acompanying nuclear power development, the technology and capability in nuclear safety regulation, research and development, engineering design and equipment manufacture have been greatly improved. The valuable techniques and experience have been accumulated in the areas such as construction, commissioning, operation management and emergency preparedness, which have favorable impacts on self-reliance design and construction of large plants in the future. Page 1

7 The development of nuclear energy has actively improved the environment condition for human beings. The total electricity generated by NPPs in 2003, if converted to coal consumption, would be approximately million tons of standard coal, thus reduced the greenhouse effect and the annual gas release that could result in acid rain. The radioactive effluent discharges have been below the national limits since the first NPP put into operation. The radiation level in the surrounding area remains at a natural background level. All plants have not been discovered any adverse impacts on the environment. 1.2 Policy and Objective for Nuclear Power Development In 2003, the total electricity generation installed capacity in Mainland of China was 390GW, which is in second place in the world. For the country of a population over 1.3 billion, however, the current total electric generation is below the demands. With the rapid economic development, the imbalance between supply and demand for electric power becomes more apparent. China is bearing a high pressure in environmental protection due to its energy source structure based on coal-fired power. The nuclear power, as a clean energy source, which is mature and can be produced in large scale, is expected to have a greater development. In the eastern coastal regions economically developed, especially, to develop nuclear power is an important choice to meet the electric demands,improve energy structure and reduce environmental pollution. The Chinese government is actively developing and implementing its nuclear power development programming to coordinate the development of nuclear power. Under the principle of On the basis of our own, to cooperate with foreign countries, to introduce foreign technologies and to promote localization, the construction of Chinese NPP is to consistently move toward standardization. By referring to the international advanced technique and experience and utilizing the existing technique, China can gradually achieve the objective of self-reliance on design, manufacture, construction and operation of large NPP. At the prerequisite of ensuring nuclear safety, the competition of nuclear power should be enhanced through reducing the costs of construction and operation. With the rapid economic development, the demands for large capacity nuclear Page 2

8 power units being characterized by safety, maturity, economy and advanced level will become more apparent. Nuclear power will play a more important role in promoting and improving of the diversity and safety of energy sources in China. By active research and development of own intellectual property and advanced technology, and thus further improving the safety and economy of NPP, nuclear power will play a more important role in the supply of energy sources in China. 1.3 Nuclear Safety Policy When we make nuclear energy bring benefit to the human, we must ensure nuclear safety in order to protect the public and the environment. In 1984, the Chinese government established the National Nuclear Safety Administration (NNSA) to take responsibility for independent nuclear safety regulation of the civilian nuclear installations, thus formed a system of supervision of nuclear safety. The State Council promulgated Regulations on the Safety Regulation for Civilian Nuclear Installations of the People s Republic of China in The regulations prescribe that the principle of Safety First should be followed in the phases of siting, design, construction, operation and decommissioning of civilian nuclear power plants. It also indicated that sufficient measures should be taken to ensure quality and operation safety, prevent nuclear accidents and minimize potential adverse impacts, and protect the staff, the public and the environment from excessive exposure and contamination beyond the national limits, that is, exposure and contamination should be reduced to a level of as low as reasonably achievable(alara). Meanwhile, the Chinese government promulgated additional nuclear safety regulations in succession to clearly define the responsibilities of governmental departments and operating organizations, made duly revisions and improvements of the system of safety regulations to keep consistent with the international nuclear safety standard. In October 2003, Chinese government implemented Act of Prevention and Remedy of Radioactivity Contamination to bring radioactive contamination control into a law-based regulation, further improve the regulation of nuclear safety and ensure nuclear safety. The Chinese government has always attached high importance to regulation Page 3

9 of nuclear safety, and has persistently strengthened the regulation of nuclear safety by increasing the human resource and financial support. The capability in regulation of nuclear safety will be improved and play an important role in guaranteeing nuclear safety. The Chinese government pays more attention to the international cooperation in the field of nuclear safety, actively takes part in the related international activities, sticks to the principle of clarity and justness, and has conducted widely international cooperation on nuclear safety with the IAEA and other countries or international organizations. 1.4 Summary on Implementing Convention In order to implement the obligations defined by the Convention, Chinese government set up a special group for implementation of the Convention. The group is responsible for organizing and coordinating the implementation of the obligations of the Convention in order to ensure that the requirements prescribed in the Convention and the decisions at each review meeting of the National Report for the Convention on Nuclear Safety will be implemented in China. China submitted the first and the second national reports for the Convention on Nuclear Safety to the review meetings of the Convention on Nuclear Safety in October 1998 and October 2001, respectively. At the same time, China made serious responses to the written questions from other countries. The comments for Chinese National Report by the second review meeting of the Convention on Nuclear Safety held in Vienna in April 2002 are as follows: The Chinese National Report and afore-hand written responses for the 56 questions were fully affirmed. By thorough discussions and questions of the practices of regulation on Chinese nuclear safety at the review meeting, each contracting part considered the independence of Chinese National Nuclear Safety Regulatory Body and the combination of international standards with the specific situation of China as two good practices. The achieved progress recognized by all contracting parts is listed as follows: - Actively promoted the legislation on nuclear safety, established and improved regulations and standards on nuclear safety; Page 4

10 - Strengthened cultivation of nuclear safety culture; - Carried out periodic safety review and operation assessment; - Strengthened the training of nuclear safety supervisors and operating personnel; - Intensified operation experience feedback of the NPPs; - Spread application of probabilistic safety assessment method; - Carried out the research of countermeasure against severe accidents of the NPPs; - Established and implemented the plan of improving equipment safety; - Enhanced response ability of nuclear accident emergency; - Enhanced environmental radiation monitoring ability; - Increased manpower and financial resources on regulation for nuclear safety. At the same time, all contacting parts expressed their persistent attentions to the following questions in the next review meeting of the Convention on Nuclear Safety to be hold in 2005: - When will the related laws such as Atomic Energy Act and Act of Prevention and Remedy of Radioactivity Contamination be taken effect; - The independency of regulation rights and practical activities of Chinese National Nuclear Safety Regulatory Body; - Being faced with the challenges from the different types of reactors, current financial and manpower resources held by Chinese National Nuclear Safety Regulatory Body can only meet basic regulation demands; - Continuously improving operation experience feedback; - The applications of probabilistic safety assessment techniques; - How are the results of periodic safety review applied in issuing license; - The uniformity of emergency plans of nuclear accident with related local provinces and how to harmonize among the three-level emergency plans (nation, province and NPPs); Page 5

11 - Results of review on nuclear safety by IRRT. Chinese government attaches high importance to the promises on the obligations in the Convention on Nuclear Safety. By review meeting, China learned the advanced experience on nuclear safety regulation from other contracting parts and found our deficiencies to be improved. China actively takes measures to resolve the problems mentioned by other contracting parts so as to make all Chinese NPPs achieve and keep a high level of nuclear safety. This report is stressed on the problems above mentioned. 1.5 Themes of the Report This report is prepared according to the requirements specified in the Convention on Nuclear Safety and Guidelines Regarding National Reports Under the Convention on Nuclear Safety. It described synthetically and systematically the situation on implementing obligations in the convention by the end of The report also outlined the important activities in nuclear safety and the progress on regulatory activities of nuclear safety in China since the second review meeting. Data of NPPs in Taiwan province of China are left open for the time being. Page 6

12 2. EXISTING NUCLEAR POWER PLANTS 2.1 List of Existing Nuclear Power Plants By the end of 2003, there were eight units in operation and 3 units under construction in China. The listing of nuclear power plants is given in Annex General Situation of Existing NPPs In China, with the exception of Qinshan Phase III NPP that adopted CANDU-6, other NPPs are all of PWR type. In the past three years, there were 5 units put into operation in succession, they are Qinshan Phase II NPP Unit-1, Guangdong LingAo NPP Units 1&2, Qinshan Phase III NPP Units 1&2. Qinshan Phase II NPP Unit-2 and Jiangsu Tianwan NPP are under construction. These NPPs were designed on the basis of some reference NPPs which had successful experience and good performance. Furthermore, some necessary improvements have been conducted to enhance the inherent safety characterristics of the NPPs. Qinshan NPP and Guangdong Daya Bay NPP have operated for about ten years. The two NPPs have accumulated the considerable experience during the operation and maintained safe and steady operation, thus created a favorable social and economic benefit. Qinshan Phase II NPP, which is equipped with 2 sets of 650MWe PWR units, is the first large commericial NPP that is designed, constructed, managed and operated by China. Its design has refered to Guangdong Daya Bay NPP and adopted some improvements. The design and equipment making of Guangdong LingAo NPP which is equipped with 2 sets of 990MWe PWR units have been partly performed by China. On the basis of referring to the design of Guangdong Daya Bay NPP, Guangdong LingAo NPP has performed more than 30 items of significant improvements in nuclear island, including 13 items which were related to engineering safety. Qinshan Phase III NPP, which is equipped with 2 sets of 728MWe CANDU-6 units, was imported from Canada. On the basis of the mature design of CANDU-6, some design improvements were conducted. Page 7

13 Jiangsu Tianwan NPP was imported from Russia. It is equipped with 2 sets of 1060MWe WWER-1000 units. The experience obtained in construction and operation of the previous WWER-1000 units was absorbed in the design. 2.3 Performance Indicators and Trend In China, all operating NPPs have established and step by step perfected their performance indicator systems. They submit periodically the related data to the State Environmental Protection Administration ( The National Nuclear Safety Administration), hereinafter, abbreviated as the SEPA (NNSA), nuclear industry administration and international organizations such as World Association of Nuclear Operators (WANO), etc. The WANO performance indictors of all NPPs from 2001 to 2003 are listed in Annex 2. It presented a good macro trend from 2001 to Safety Status of NPPs In China In order to conduct the nuclear safety regulation of NPPs on siting, construction, commissioning, operation and decommissioning, the SEPA (NNSA) issues relevant safety licenses and prescribes the permitted activities and the conditions that must be obeyed. In order to determine whether or not the documents provided by safety license applicant of nuclear power plant meet the requirements of national nuclear safety codes, the safety measures are adequate to protect the site personal, the public and the environment from radioactive jeopardy, the SEPA (NNSA) performs relevant reviews and inspection before issueing the licenses. In order to ensure that the operating NPPs maintain and continuously enhance their safety level, the nuclear safety codes require that the operating organization should perform periodic review of NPP operation and submit the safety-related documents to the SEPA (NNSA). Qinshan NPP began its ten-year Periodic Safety Review (PSR) in 2001 and submitted the review report to the SEPA (NNSA) in September The SEPA (NNSA) will complete the final review in Guangdong Daya Bay NPP submitted The Periodic Safety Review Program to the SEPA (NNSA) for approval at the end of After review and approval, up to now the PSR entered a phase of reviewing the special reports. Page 8

14 The safety barriers of the operating NPPs in China have shown integrity through tests and monitoring. The integrity of fuel element cladding satisfies the requirements of technical specifications. The leakage rates of the reactor coolant system and the containment are far below the limits of Technical Specifications. The occupational exposure dose of the operating NPPs is far below the limits of national standards in China. The discharges of radioactive effluents of the NPPs have been effectively controlled and monitored. The level of discharge volume per year of NPPs is far lower than the state regulatory limits. There has been no undue dose release event occurring. The radioactivity level of the surrounding environment has been kept within the fluctuating range of ambient natural background. At present, there are 3 units under construction in China. In the phases of siting, design, construction and commissioning, the activities related to nuclear safety are all under control. Effective supervision and reviews are performed by the SEPA (NNSA) according to the requirements in the related nuclear safety regulations of China, so as to guarantee the construction quality and nuclear safety of the constructing NPPs. On the operational assessment, in 2002, China established the Operational Assessment Committee for NPPs and implemented the first national peer review of Qinshan Phase II NPP. According to the plan, the Operational Assessment Committee for NPP will complete the peer review for all 6 NPPs in China mainland by For the last three years, the Chinese NPPs have accepted an IAEA Pre-OSART and two WANO Peer Reviews, the results of the operational assessments showed that the reviewed NPPs managements on operation, maintenance, training, technical support, radioactive protective, industry sfety, emergency, etc. were kept in order, the overall safety status was good. The overall safety level of nuclear power plants was improved and enhanced through the operation assessment. All operating NPPs in China are in the prophase of their designed lifetime. It is shown that the safety of continuous operation of these NPPs is guaranteed through several years operational practices, in-service inspections, tests, analyses, and several safety reviews and assessments carried out by the SEPA (NNSA), other competent departments of Chinese government and international organizations. Page 9

15 3. LEGISLATION AND REGULATION 3.1 Nuclear Safety Laws,Codes and Guides General Description of Nuclear safety Laws, Codes and Guides Since 1982, China has collected extensively and studied carefully the laws, regulations on nuclear safety used in nuclear power developed countries, consulted the nuclear safety codes and guides of the IAEA and established the Chinese nuclear safety regulation system. Many units have been put into operation in China. The corresponding experience on safe operation of NPPs has been accumulated. According to the experience combined with the newest requirements of international nuclear industry, China continually perfects its nuclear safety laws and codes. The system of laws,codes and guides for Chinese nuclear safety consists of state laws, administrative regulations of the State Council, department rules, guiding documents and reference documents. The state laws, which have higher legal effects than administrative regulations and department rules, are enacted by the National People s Congress and its Standing Committee. Administrative regulations, which have legal binding effects, are promulgated by the State Council according to the Constitution and laws. Departmental rules are promulgated by the related governmental departments within their purview according to the laws and the administrative regulations of the State Council and have legal binding effects. (1) Laws The existing state laws applicable to nuclear safety field are The Constitution of the People s Republic of China, Environmental Protection Act of the People s Republic of China and Act of Prevention and Remedy of Radioactivity Contamination of the People s Republic of China. (2) Administrative regulations of the State Conucil The existing administrative regulations that applicable to nuclear safety field are Regualtions on the Safety Regulation for Civilian Nuclear Installations of the People s Republic of China, Regulations on Nuclear Materials Control of the People s Republic of China and Emergency Management Regalations for Nulcear Accidents of Nuclear Power Plant. They are rules to stipulate the scope of nuclear safety Page 10

16 management, regulatory body and its rights, principles and procedures of supervision and other important issues. (3) Departmental rules The detailed rules are departmental rules which stipulate specific implementing measures. Nuclear Safety Codes are departmental rules enacting nuclear safety objectives and basic safety requirements. (4) Guiding documents Nuclear safety guides are guiding documents that explain or supplement nuclear safety codes and recommend relevant methods or procedures to implement safety code. (5) Reference documents Nuclear safety technical documents are reference documents in the technical fields of nuclear power plant. The hierarchy of nuclear safety laws, codes and guides is listed in Figure Issuded Laws, Regulations and Guides The Chinese government always attaches high importance to nuclear safety. Since October 1986 when the State Council promulgated Regulations on the Safety Regulation for Civilian Nuclear Installations of the People s Republic of China, China has already issued a series of laws, regulations and guides which cover NPPs, other reactors, installations for nuclear fuel production, processing, storage and reprocessing, and facilities for radioactive waste processing and disposal, etc. All these formed an available law system that must be obeyed by nuclear installations in siting, design, construction, operation and decommissioning. The Environmental Protection Act of the People s Republic of China was approved by the Standing Committee of the National People s Congress in It is the special law for protecting and improving the living environment, preventing and remedying contamination, guaranteeing human health and promoting social development. Act of Prevention and Remedy of Radioactivity contamination of the People s Republic of China was approved by the Standing Committee of the National People s Congress in The Act is applied to prevent environment contamination Page 11

17 caused by discharges of radioactive gas, liquid and solid waste during the nuclear energy development, nuclear technology application, uranium (thorium) mining and associated mineral resources exploitation and application. The purpose of the Act is to protect environment and health of the public. China will continue to strengthen the legislation of special laws on nuclear safety such as Atomic Energy Act, etc. Figure 1 The hierarchical structure of laws, regulations and guides on nuclear safety of China The State Council promulgated Regulations on the Safety Regulation for Civilian Nuclear Installations of the People s Republic of China and Regulations on Nuclear Materials Control of the People s Republic of China in 1986 and 1987 respectively. These regulations systematically stipulated the purpose and the scope of supervision Page 12

18 of civilian nuclear installations and nuclear materials, established nuclear safety licensing system, specified rules for regulation of nuclear materials, defined the duty of regulatory bodies and the legal responsibility of operating organizations. In 1993, the State Council promulgated Emergency Management Regulations for Nuclear Accidents at Nuclear Power Plant, which stipulates principles, countermeasures, and measures adopted for nuclear accident emergency. Since 1986, according to different technical fields, the SEPA (NNSA) and the related departments have promulgated in succession a series of nuclear safety codes and detailed rules related to siting, design, operation and quality assurance of NPPs. China Atomic Energy Authority (CAEA) and the Ministry of Health have also issued some departmental rules. In addition, the related departments consecutively formulated relevant nuclear safety guides. Based on implementation, supplement and revision have been made for the issued codes and guides. Therefore, a relatively complete system of regulations and rules on nuclear safety has been formed. 3. Existing laws, regulations, guides on nuclear safety in China are listed in Annex Newly Issued Laws,Regulations and Guides on Nuclear Safety Since the Second Review Meeting of The Convention on Nuclear Safety in 2001, China has promulgated a series of new laws, regulations and guides, the related activities are as follows: Act of Prevention and Remedy of Radioactivity Contamination of the People s Republic of China was approved by the Standing Committee of the National People s Congress in the Third Meeting on July 28, The purpose of the Act is to prevent and control radioactive contamination, protect environment, guarantee human health, promote exploitation and peaceful utilization of nuclear power and nuclear techniques. It is applicable to all the preventive activities related to the nuclear installations on siting, construction, operation, decommissioning and nuclear technology, uranium mining, radioactive mineral resources application, conducted in Chinese territory and marginal sea. The main contents of the act are as follows: - surveillance and management of the radioactive contamination prevention; - radioactive contamination prevention of nuclear installations; Page 13

19 - radioactive contamination prevention of nuclear technology utilization; - radioactive contamination prevention of uranium mining, radioactive mineral resources; - radioactive waste management. Act of Prevention and Remedy of Radioactivity contamination of the People s Republic of China was put into force on October 1, This Act is a specific law approved by the Standing Committee of the National People s Congress for radioactive contamination prevention and remedy. With its promulgation and putting into force, the Act has brought the radioactive contamination prevention of China into a law-based management. China has been making further revision and perfection of nuclear safety regulations, the new revisions of Code on the Safety of Nuclear Power Plant Design and Code on the Safety of Nuclear Power Plant Operation are promulgated on April 18, The matched nuclear safety guidelines and other relevant nuclear safety codes are in modification. After being reviewed, they will be promulgated. The new nuclear safety codes not only adopt the international new development results but also make modification according to the concrete circumstances of China. In addition, the related departments consecutively formulated departmental rules, including: - Reporting System of Nuclear Accident Emergency for NPP; - Management Rules of Emergency Crossing the Boundary for Radioactive Influence due to Nuclear Accident ; - Medical Treatment Standard for Radiation Damage; - Management Methods for Operation Assessment of NPP; - The Basic Standard on the Ionization Radiation Protection and Radioactive Source Safety; - Management Rules for Nuclear Accident Emergency Exercise of NPP. Page 14

20 3.2 Nuclear Safety Regulation Nuclear Safety Regulation System The State Council decided that The State Environmental Protection Administration will externally reserve the name of The National Nuclear Safety Administration. The SEPA (NNSA) is in charge of its unified and independent regulation of the safety of NPPs throughout the country. The licensing system is one of main measures of the SEPA (NNSA) in regulation. By means of the management of licenses, the SEPA (NNSA) regulates NPPs, nuclear materials and nuclear activities. The SEPA (NNSA) is in charge of the regulation of environmental protection of NPPs throughout the country. The Nuclear Industry Administration is in charge of the safety management of NPPs and is subject to nuclear safety surveillance of the SEPA (NNSA.) According to nuclear safety regulations, the licensee (or applicant) of NPP bears all responsibilities for the safety of NPPs, nuclear materials and nuclear activities. By means of license examination and approval, supervision, enforcement of laws, rewards and punishment, implementation of nuclear safety surveillance relevant to licensee s activities, the SEPA (NNSA) ensures that licensee can bear the responsibilities for nuclear safety and carries out nuclear activities in conformity with legal provisions Duties and Responsibilities of Regulatory Bodies on Nuclear Safety The SEPA (NNSA) and the Ministry of Health are responsible for surveillance on the nuclear safety of NPPs, environmental protection, the individual dose, hygienic and health conditions of the site personnel and the general public, respectively Duties and Responsibilities of the SEPA (NNSA) (1) to organize drafting and formulating regulations related to the safety of NPPs and to review technical standards of nuclear safety; (2) to organize review and assessment of both the safety performances of NPPs and the capability of the operating organizations to ensure safety, and to issue or revoke nuclear safety licenses; (3) to be responsible for performing nuclear safety inspection; Page 15

21 (4) to be responsible for investigation and treatment of nuclear accidents; (5) to provide guidance and surveillance in drawing up and implementing emergency preparedness plan in cooperation with the relevant departments; (6) to organize the relevant departments to conduct scientific researches related to safety and management of NPPs, propagation and education as well as relevant international professional contacts; (7) to be responsible for safety inspection of civilian nuclear materials; (8) to be responsible for regulation of civilian nuclear pressure retaining components; (9) to conduct mediation and arbitration of disputes related to nuclear safety jointly with related departments. (10) to be responsible for formulation, supervision and enforcement of regulations and standards on environmental management of NPP; (11) to be responsible for reviewing instrument of ratification of the environmental impact assessment reports of NPP; (12) to be responsible for the monitoring of radiological environment of NPP; (13) to be responsible for the management of radioactive waste; (14) to be responsible for the organizing and implementing the system of professional qualification of registrated nuclear safety engineers ; (15) to participate in emergency response activities Duties and Responsibilities of the Ministry of Health The duties and responsibilities of the Ministry of Health are (1) to be responsible for formulating hygienic rules and standards related to personal of nuclear facilities and general public; (2) to be responsible for monitoring exposure dose of the occupational personal and the public; (3) to be responsible for reviewing and approving the evaluation of the health effects on human body due to nuclear contamination; (4) to be responsible for the prevention and cure of radiation injury. Page 16

22 3.2.3 Organization Structure of Regulatory Bodies The headquarters of the SEPA (NNSA) is in Beijing, and its four regional offices are established in Shanghai, Shenzhen, Chengdu and Beijing, respectively. The regional offices are responsible for the routine inspections of nuclear safety in these areas. In order to perform the inspection better, the SEPA (NNSA) has established the Nuclear Safety Center (NSC) as its technical support and guarantee center. The SEPA (NNSA) has also established an Advisory Committee on Nuclear Safety and Environmental Radaition Protection. The Advisory Committee is to provide advice in formulation of legislation, development of the technical capability of nuclear and review, inspection on nuclear safety. The organization structure of the SEPA (NNSA) is listed in Figure Nuclear Safety Inspection The SEPA (NNSA) and its accredited regional offices sent regional inspection groups (inspectors) to the site of plant siting, manufacture, construction and operation of NPPs to exercise the following duties: (1) to examine whether or not the safety-related information that is submitted conforms to actual situation; (2) to inspecte whether or not the construction is carried out in accordance with the approved design; (3) to inspecte whether or not the management is performed in accordance with the approved quality assurance program; (4) to inspecte whether or not the construction and operation of the NPPs accords with the nuclear safety regulations and the conditions specified in the licenses; Page 17

23 Administrative Office State Environmental Protection Administration (National Nuclear Safety Administration) Nuclear Safety and Environment Advisory Committee Department of Planning and Finance Department of Policies, Laws and Regulations Department of Science, Technology and Standards Department of Human Resources Management and Institutional Affairs Department of International Cooperation Department of Pollution Control Department of Nature and Ecology Conservation Department of Nuclear and Radioactive Safety Department of Environmental Impact Assessment Bureau of Environmental Supervision Nuclear Safety Center Shanghai Regional Office Guangdong Regional Office Sichuan Regional Office Northern Regional Office Figure 2 The organization structure of the SEPA (NNSA) (5) to investigate whether or not the operating organization has a adequate capability for safe operation and carrying out emergency response plan; (6) other functions necessary to be supervised. When performing a mission, the nuclear safety inspectors have the right to access the sites of components manufacturing, construction and operation of NPPs to investigate and collect information related to nuclear safety. When necessary, the SEPA (NNSA) has the right to take compulsory actions, including charging NPPs to stop operation. Page 18

24 3.3 Licensing System China adopts licensing system for nuclear safety. Nuclear safety license is a law document that is approved by national regulatory body and authorizes applicant to deal with the specific activities related to nuclear safety (such as siting, constructing, commissioning, operation and decommissioning of NPPs, etc.) Types of Licenses for NPP (1) Construction permit of NPP; (2) Operation license of NPP; (3) License for operators of NPP; (4) Other permits subject to be approved which include the review comments on NPPs siting and instrument of ratification for the first fuel loading of NPPs, instrument of ratification for decommissioning of NPPs, etc.. (5) Instrument of ratification of environmental impact assessment report at different phases of NPPs Issuance of NPP Licenses The procedures of application and issuance of licenses in China are shown in Figure 3. The applicant should submit the application, safety analysis report and other related documents required by the code to the SEPA (NNSA). Only after appraisal and approval, the applicant is allowed to carry out relevant nuclear activities. During the process of appraisal, the SEPA (NNSA) should ask for opinions of the related departments of the State Council as well as the governments of province, autonomous region or municipality directly under the central government where NPPs are located. Page 19

25 Applicant submit application and safety analysis report, etc. The relevant departments of the State Council and the local government put forward their comments. The SEPA( NNSA) Nuclear safety technical review and approval Advice from Nuclear Safety Advisory Committee of the SEPA( NNSA) Results of Technical Review and Assessment SEPA(NNSA) Nuclear Safety Inspection Ratification documents of national relevant departments The SEPA(NNSA) issues licenses Figure 3 The procedures of application and issuance of licenses After getting the results of technical appraisal, asking for comments of the related departments of the Sate Council and local government, and also seeking advice from the Nuclear Safety Advisory Committee, the SEPA (NNSA) decides independently whether the licenses are to be issued or not, meanwhile the SEPA (NNSA) stipulates the essential necessary license conditions. Since the Second National Report under the Convention on Nuclear Safety, the SEPA (NNSA) issued the following new licenses: (1) the instrument of ratification for the first fuel loading of Unit 1 of Qinshan Phase II NPP on October 9, 2001; (2) the instrument of ratification for 18-month refueling of Guangdong Daya Bay NPP on December 3, 2001; (3) the instrument of ratification for the first fuel loading of Unit 1 of Guangdong LingAo NPP on December 8, 2001; Page 20

26 (4) the instrument of ratification for the first fuel loading of Guangdong LingAo NPP unit 2 on June 22, 2002; (5) the instrument of ratification for the first fuel loading of Unit 1 of Qinshan Phase III NPP on July 17, 2002; (6) the instrument of ratification for the first fuel loading of Qinshan Phase III NPP unit 2 on March 13, 2003; (7) on March 31, 2003, the SEPA (NNSA) issued the corresponding license to Daya Bay Nuclear Power Operation and Management Co. Ltd.(DNMC) and approved Operation License of Units 1&2 of Daya Bay NPP that is shared by China Guangdong Nuclear Power Holding Co. Ltd. (CGNPC) and DNMC. It also approved Ratification of the First Fuel Loading of Units 1&2 of LingAo NPP that is shared by LingAo Nuclear Power Co. Ltd. and DNMC and decided the licence would have one year s tryout, and then it will make a decision on the next licensing scheme according to the results of concrete application Responsibilities of the Licensee The operating organization of the NPP is directly responsible for the safety of its NPP it operates. Its main responsibilities are as follows: (1) to comply with the relevant laws, administrative regulations and technical standards of the country to ensure the safety of NPPs; (2) to accept the safety surveillance from the SEPA (NNSA) and the Ministry of Health, etc.; to report the safety situation timely and faithfully and to provide relevant information; (3) to take overall responsibility for the safety of its NPPs, the safety of nuclear materials, and the safety of the site personnel, the public and the environment. 3.4 Nuclear Industry Administration China Atomic Energy Authority (CAEA) is the nuclear industry administration in China. It is in charge of development of peaceful utilization of atomic energy in China, establishment of relevant regulations and control of nuclear material. It takes part in IAEA and conducts its activities on behalf of the Chinese government. Page 21

27 3.4.1 Duties and Responsibilities of the CAEA Duties and Responsibilities of the CAEA are as follows: (1) to research and draft out policies and regulations for peaceful utilization of atomic energy in China; (2) to research and establish developing programme, planning and nuclear industry standard for peaceful utilization of atomic energy in China; (3) to organize demonstration, review and approval of significant science and technology project on peaceful utilization of nuclear energy; be in charge of supervision and coordination of the implementation of significant science and technology projects in nuclear energy; (4) to conduct control of nuclear material; and review and management of nuclear export; (5) to promote exchange and cooperation in nuclear energy field among governments and also among international organizations; take part in the IAEA and related activities on behalf of Chinese government; (6) to lead on organizing national coordination committee for nuclear accident emergency; be in charge of developing, preparing and implementing emergency plan for nuclear accident; (7) to take responsibility for management of physical protection and fire protection of NPPs Organization Structure of the CAEA The CAEA includes five departments and four functional offices. They are Administration Department, System Engineering Department, International Cooperation Department, General Planning Department, Science and Technology Quality Control Department, National Nuclear Accident Emergency Office, Nuclear Material Control Office, Isotope Management Office and Nuclear Power Office. Page 22

28 4. GENERAL SAFETY CONSIDERATIONS 4.1 Priority to Safety The Principle of Safety First and Nuclear Safety Objectives Safety First is regarded as the nuclear safety principle of all the NPPs in China. In all activities of siting, design, construction, operation and decommissioning of the NPPs, the principle of Safety First has the utmost priority. Organizations and individuals engaged in nuclear power activities must follow through this principle. In the case of contradiction of safety with other aspects, such as economical or rate of progress, etc., any resolutions should be subordinated to the requirements of nuclear safety. The general nuclear safety objectives are defined as establishing and keeping an effective defense against radiation jeopardy to protect the site personal, the public and the environment. The general objectives are supported by two interrelated and complementary safety objectives which are objective for radioactive protection and objective for technical safety. Technical measures, together with management and procedure measures, guarantee an effective defense against radiation jeopardy. (1) Objective for radioactive protection are to ensure that radioactive exposure and scheduled effluent of radioactive waste under all operation conditions of NPP are within the stipulated limits and in accordance with ALARA, and to mitigate the radioactive effects of all accidents. (2) Objectives for technical safety are to take all reasonable actions to prevent accidents in NPP and mitigate their consequences, to minimize the radioactive consequences of all possible accidents including accidents with very low probability considered in design of NPP and be within the specified limits, to ensure that probability for accident with severe radioactive consequences is very lower Licensee s Commitment to Safety The principle of Safety First and nuclear safety objectives are principal requirements for all organizations engaged in nuclear power activities. The operating organization shall give its commitment to NPP safety. All other organizations such as Page 23

29 design and construction organizations, suppliers should give their corresponding safety commitments,. The commitment to safety is to be written in the policy statement of quality assurance program and be inspected by operating organization and supervised by the SEPA (NNSA). All organizations shall fulfill the task of commitment in their own target of management. Commitments to safety: All activities related to the NPP safety shall accord with the standards in safety codes. Nuclear safety is placed on the position of top priority. The position shall not be restricted and affected by production schedule and economic benefit. NPP shall establish and maintain effectively defense in depth system to protect the NPP staff, the public, and the environment from radioactive hazards. Safety review and assessment system shall be established to monitor and assess relevant activities, to find out and correct the faults and deficiencies created from work as well as to pursue high quality work target so that safety performance could be sustainable improved Cultivation of Safety Culture In order to achieve excellent safety performance and enhance the safety culture level, Chinese NPPs made the following improvements in the course of cultivation of safety culture: (1) Establishing and perfecting rules and regulations for safe production: nuclear safety policy, industrial safety policy and radiation protection policy are developed, safety goals are set and categorized and controlled; safety production responsibility regulations are established and perfected, management programs, management procedures and work procedures are revised and improved constantly; activities related to safe production are supervised and inspected so that potential safety accidents could be eliminated timely. (2) Establishing safety performance indicators: a set of safety performance expectations and indicators is established in each NPP to assess safety culture and general safety status of NPP quantitatively. Weakness in the safety management of NPP could be found out through trend analysis of various indicators and corresponding corrective actions could be taken for improvement. These indicators include not only 8 WANO performance indicators which could be used for evaluating operational performances of NPP but also other indicators which come from Page 24